Community Consultation and the ‘Hard to Reach’
Nillumbik Shire Council Case Study Report Council Plan and Strategic Resource Plan 2005-06
Nicola Brackertz Denise Meredyth
The Hard to Reach Project is a collaborative research venture with eight Victorian local councils, the Victorian Local Governance Association and researchers from Swinburne University of Technology. The three year project is jointly funded by the Australian Research Council and partner organisations.
Project Team Chief Investigator: Prof Denise Meredyth Project Leader: Nicola Brackertz Researchers: Katrina Gorjanicyn, Dr Helen Sheil, Dr Ivan Zwart Statistician: Liss Ralston
Partner Organisations City of Boroondara, City of Darebin, City of Maribyrnong, City of Melbourne, City of Moreland, Shire of Nillumbik, City of Port Phillip, City of Whittlesea, Victorian Local Governance Association.
Published May 2007 by Swinburne Institute for Social Research Swinburne University of Technology PO Box 218 Hawthorn Victoria 3122 Australia
T +61 3 9214 8825 F +61 3 9819 5349 Email: [email protected]
© Copyright Swinburne Institute for Social Research 2007
This publication is copyright. No part may be reproduced by any other process except in accordance with the provisions of the Copyright Act 1968.
Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
Contents Introduction...... 1 Why the case study was chosen ...... 1 Who is hard to reach and why? ... 3 Problems with ‘hard to reach’ terminology...3
Origins and usage of ‘hard to reach’...... 3
Who is identified as hard to reach? ...... 4
Sampling ‘hard to reach’...... 5 Case study context ...... 7 Legitimacy of the participation process .7 Democratic legitimacy of public participation ...... 8 Models of public participation ...... 9 Methods for participant recruitment.....12
Background to the consultation 15
Shire of Nillumbik profile summary...... 15
Demographic Indicators...... 17
Social and Economic Indexes for Areas (SEIFA) ...... 17 Transience ...... 18 Housing tenure...... 19 Labour force status...... 19
Household income...... 19
Employment and hours worked ...... 19
Journey to work...... 20 Household Composition ...... 20 Country of birth...... 20 Indicators of community strength...... 20 Who is hard to reach in Nillumbik?...... 22 Melbourne 2030 ...... 22 Interface council ...... 24 Financial issues...... 25 Implications for resource planning...... 26 Consultation on the Nillumbik Strategic Resource Plan...... 27
Workshops ...... 28
Promotion...... 28
Consultation on Council Plan and Strategic Resource Plan
Workshop format ...... 31 Representativeness of workshops ...... 32 Participant Evaluation...... 35 Workshop outcomes...... 38 The Survey...... 40 Representativeness of survey respondents...... 41 Survey results...... 42 Council Plan 2006-2010...... 43 Strategic Resource Plan and Budget Kit... 45 Implications for the ‘hard to reach’ project...... 47
Recommendations ...... 51
Participation strategy...... 51
Representativeness of the consultation ...... 51 Decision making based on consultation outcomes...... 52 Planning and resource allocation ...... 52 Skills development ...... 52
Knowledge management...... 52
References ...... 54
Appendix 1 ...... 57
Appendix 2 ...... 59
Appendix 3 ...... 61
Appendix 4 ...... 63
Appendix 5 ...... 69
Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
Introduction
This report is part of a series of case each partner council. In order to gain study reports for the Community a balanced insight into current Consultation and the ‘Hard to Reach’ practice, case studies were matched research project. The project is to provide examples of a range of investigating how community levels of consultation: consultation is currently practised by • high level strategic planning Victorian councils, especially in relation to multiple publics and • place based issues groups that councils can find hard to • service reviews reach. • issue based consultations The project is a collaborative • consultations aimed at research venture with eight Victorian involving specific ‘hard to local councils, the Victorian Local reach’ groups Governance Association and • community development. researchers from Swinburne University. The three year project is The matched case studies will assist jointly funded by the Australian the greater Community Consultation Research Council, the Cities of and the ‘Hard to Reach’ project to Boroondara, Darebin, Maribyrnong, provide some useful resources for Melbourne, Moreland, Port Phillip each of the partner councils, as well and Whittlesea, and the Shire of as a broader commentary and Nillumbik. The eight participating analysis of the challenges faced councils comprise inner city as well when councils attempt to consult with as city fringe locations, homogenous or engage their communities. and highly ethnically and culturally diverse populations, economically Why the case study was advantaged and disadvantaged chosen areas, well established and newly The Strategic Resource Plan (SRP) developing areas, municipalities with and review of the Council Plan 2006- a long-standing commitment to 09 was chosen as an example of a community consultation as well as consultation about a high level those which are still developing their strategy or plan which affects all policies and practices. While the members of the Nillumbik councils chosen may not be community. Consultations associated statistically representative, the range with the development of future- of contexts and socio-demographic oriented high level strategic characteristics reflect the attitudes documents such as Council Plans, and practice of community Municipal Strategic Statements and consultation as it is currently taking Municipal Health Plans are usually place in Victoria. considered particularly difficult in As part of this research, a detailed terms of attracting community case study is being conducted with interest and contribution from
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participants that are broadly therefore committed to strengthening representative of the community. its consultation processes to engage People tend to be reluctant to get a diverse range of local people and involved, due to the complexity and show them that their input has made multi-faceted nature of some strategy a difference. As a consequence, a documents. It is difficult to persuade subset of the consultation was them to see the immediate impact of concerned with exploring how people a policy or strategy, or its relevance would like to be consulted. to their own lives. Involving a wide As part of the case study range of community members in methodology, Nicola Brackertz, a such planning exercises involves researcher from Swinburne considerable time and resources and University, attended most of the it is often felt that, in such cases, 1 consultation workshops and liaised everyone is hard to reach. closely with Council staff and the All councils are required to produce a consultant. To gain a good Council Plan, which is a four-year understanding of the process, document that identifies key strategic interviews were conducted with areas, as well as indicators for Jacky Close from Council’s Social achieving these. The SRP is linked to Planning Unit and Mike Tierney from the Council Plan and specifies how Tierney Andrews Consulting at key the priorities identified in the Council stages of the consultation process. Plan can be resourced. The Council also facilitated access to Nillumbik Council Plan 2006-09 background information about the names the following key service consultation, reports and other areas: relevant data. • Environment (natural, built and cultural) • Health and wellbeing • Community assets • Governance and community engagement. Another aspect of the consultation lay in Council’s desire to do real community consultation (Nillumbik Shire Council 2006a). In the Council Plan 2006-09 the Shire pledged itself to listening to the community to gather information about community needs, which will inform and direct the work of Council. Council is
1 Compare Brackertz, Zwart et al. (2005).
2 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
Who is hard to reach and why?
In the context of local government, The problem with using the term ‘hard to reach’ is a term sometimes ‘hard to reach’ is that implies a used to describe those sections of homogeneity within distinct groups the community that are difficult to which does not necessarily exist. involve in public participation. It is Thereby ‘it defines the problem as useful to take a step back and look at one within the group itself, not within the usage of the term in the literature your approach to them’ (Smith 2006). more generally, as many of the This sentiment is echoed by Murphy issues raised there are also (2006). applicable to local councils. From what has been discussed so far, it is not surprising that ‘hard to Problems with ‘hard to reach’ reach’ is a potentially stigmatising terminology terminology. Freimuth and Mettger There is a lack of clarity about what (1990:323) offer an illustrative exactly is meant by ‘hard to reach’ summary of prejudices about hard to and the term is employed reach: inconsistently; sometimes it is used to refer to minority groups, such as Hard-to-reach audiences have ethnic groups, gays and lesbians, or been called obstinate (2), homeless people; other times it may recalcitrant (3), chronically refer to broader segments of the uninformed (4), disadvantaged population, such as old or young (5), have-not (6), illiterate (7), people or people with disabilities malfunctional (8), and (Jones and Newburn 2001:vi). In the information poor (5). service context, ‘hard to reach’ often refers to the ‘underserved’, namely, Origins and usage of ‘hard to minority groups, those slipping reach’ through the net and the service ‘Hard to reach’ is often used in the resistant (Doherty, Stott and Kinder context of social marketing (Beder 2004). An alternative term for ‘hard to 1980). The aim of many social reach’ used in the sampling context marketing initiatives, especially in the is ‘hidden populations’ (Atkinson and field of health, is to affect change in Flint 2001; Duncan, White et al. behaviour using marketing tools and 2003) – as in they are hidden from techniques adopted from the private the point of view of sampling. Hidden sector (Walsh, Rudd et al. 1993). populations may also actively seek to Social marketing is a consumer conceal their group identity, as for focused approach that believes example in the case of illicit drug nobody is impossible to reach – it users, gays and lesbians, and just depends on the approach taken. sexually active teens (Duncan, White Paul Vittles commented that ‘no-one et al. 2003). is hard to reach, just more expensive to reach. It is important to put more
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effort and creativity in reaching these people, rural people, people with groups’ (Wilson 2001:1). disabilities, ethnic groups), but it is important to acknowledge that This is borne out in medical and attitudinal aspects are a contributing health research where ‘hard to reach’ factor. For example, people could be often appears in relation to the ability hard to reach because they think of health services to reach out to council does not care about them, certain segments of the population that council does not listen or even who are difficult to contact (or difficult that it is irrelevant to them (Wilson to influence using existing 2001). It is these attitudes that can techniques) (Freimuth and Mettger be even harder to overcome than 1990; Walsh, Rudd et al. 1993; demographic aspects. Faugier and Sargeant 1997; Burhansstipanov and Krebs 2005). In addition to demographic and Here the ‘hard to reach’ are also attitudinal characteristics, there are equated with the ‘underserved’, practical reasons why some people which can mean that either there are are hard to reach. In the medical no services available for these context, the most frequently reported groups or, more often, that these barriers to participation in the US groups fail to access the services Head Start programme were prior that are available (Earthman, commitments and schedule conflicts Richmond et al. 1999; Barlow, (Lamb-Parker et al. 2001 as cited in Kirkpatrick et al. 2005; Barlow, Kirkpatrick et al. 2005). This Burhansstipanov and Krebs 2005). is of relevance for scheduling public The reasons ‘hard to reach’ are of participation processes in councils as such concern in the medical and well. educational fields is that they tend to Interviews and focus groups have poorer health and educational conducted with the partner councils outcomes, which is why ‘hard to identified culturally and linguistically reach’ is of particular concern to diverse communities, indigenous, those working with young people and young, elderly, disabled and in youth services (Earthman, homeless people as hard to reach. Richmond et al. 1999; The Reading Other groups included drug users, Agency 2006). sex workers, those on low incomes, high rise apartment dwellers, faith Who is identified as hard to based communities, businesses reach? (traders), single parents, newly With the renewed emphasis on arrived residents, gay and lesbian governance and community people, homeless, problem gamblers engagement, councils are now also and residents of hostels and focusing on those population boarding houses. Some rural segments that do not usually populations were considered to be participate. Many organisations, but hard to reach, while some groups of councils in particular, identify ‘hard to people (in particular, those who were reach’ populations using asked to regularly respond to service demographic definitions (young
4 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
reviews) were becoming over- at the same time having to work to consulted and increasingly reluctant address the preconceptions (often to participate. To this illustrious list misconceptions) of those with whom should be added persons who would they wish to consult (Freimuth and like to have a say in local issues, but Mettger 1990; Barlow, Kirkpatrick et do not know how to access council al. 2005; Burhansstipanov and Krebs processes. Also identified were 2005). An alternative way to view the unresponsive people, such as the ‘disinterest’ or ‘lack of motivation to time poor (people who are in full-time contribute or become involved’ often work and/or work outside the council associated with ‘hard to reach’ area); persons who have a low groups is by emphasising differences commitment to the local area or no rather than deficits. The difference vested interest in local issues (e.g. thesis suggests that when people are renters); and disengaged people, motivated to acquire information and who are disillusioned with, or feel when this information is functional in disconnected from the political their lives, they will make use of it. process. This notion has import for the sampling of ‘hard to reach’. However, a list of groups is not necessarily a useful tool to identify Sampling ‘hard to reach’ and establish relationships with ‘hard to reach’; all the more, because In sampling, the term ‘hard to reach’ certain groups may be hard to reach is used frequently in relation to the in some contexts or locations and not need to include certain population in others. A more fruitful approach is segments to obtain a representative sample (Messeri, Aidala et al. 1995; to identify characteristics of ‘hard to 2 reach’ groups and link these to Rhodes, Kling et al. 2004). In successful approaches to contact or relation to participatory practice in involve them (Brackertz 2007; Health councils, representativeness is linked and Safety Executive 1994; Jones to the need to include all those and Newburn 2001). The wide affected by a particular issue to connotations associated with and secure democratic legitimacy. The imprecise usage of the term ‘hard to method and tool of public reach’ calls into question its utility. A participation used will affect the number of groups and population representativeness of those segments have traditionally been participating. The degree to which underrepresented in councils’ public particular groups are hard to reach is participation but, in reality, few are context specific and depends on the hard to reach if the right approach is population targeted, the participation used. method used and the issue consulted upon. Common to many writings is the recognition that those wishing to involve ‘hard to reach’ need to overcome their own prejudices about 2 Discussions here relate to the inclusion the people they wish to contact, while of blacks, HIV positive people, drug users etc.
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Van Meter (1990 cited in Faugier and for qualitative research. In essence it Sargeant 1996) distinguishes relies on a series of referrals that are extensive and intensive data made within a circle of people who collection methodologies. know each other or are loosely Descending methodologies connected. The respondent is asked (quantitative strategies executed at to name other persons who fit the the level of general populations) criteria described by the researcher. require highly standardised The newly identified persons are questionnaires, population samples then interviewed and in turn asked to and traditional statistical analysis. nominate others who fit the criteria, These quantitative methods rely on and so on. ‘representative’ sampling strategies In councils, involving the ‘hard to to make inferences about the whole reach’ is usually done through a population. Survey studies in the combination of targeting public general population that rely on participation tools and reaching out closed questions are inherently to communities in ways which they limited by the data obtained and may are likely to respond to. The case yield little understanding of the study described below examines how phenomenon under study, which is this was played out in relation to particularly limiting when exploring Nillumbik Shire Council’s public new or sensitive areas (Hendricks participation problem (i.e. involving a and Blanken 1992 as cited in Faugier representative portion of the local and Sargeant 1997). community in a discussion on a high Ascending methodologies, on the level consultation on strategic issues) other hand, use qualitative sampling and the outcomes that resulted from designs and are usually non- the choices made. generalisable, but provide a high degree of insight into a social process. Typical methodologies use snowball sampling, life histories and ethnographic monographs with analysis adapted to suit the specific techniques employed (Faugier and Sargeant 1997). Snowball sampling is an example of a special technique that was developed to attempt to include ‘hard to reach’ and hidden populations (Atkinson and Flint 2001). It is a link-tracing methodology that is used most often
6 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
Case study context
The case study raises a series of the Shire’s financial limitations. It can issues about the challenges facing also be evaluated in terms of the local government authorities when representativeness of the community consulting on high level strategic members who contributed to the documents. Questions relate to: consultations. To give political legitimacy to decisions made and • the extent to which a priorities set on the basis of what the representative sample of the community says, it is necessary to be community can (or is willing able to show that those involved in to) contribute the consultation are representative of • the suitability of various the municipality’s population. methods of public involvement Otherwise results are open to to facilitate that input criticism and complaint and can be • the legitimacy of public subject to challenge on the basis that participation in council they do not reflect the interests of the decision making in the context wider community. of an already established In the context of councils’ public framework of democratic participation processes, representation ‘representative’ means those • the effectiveness of public affected by the issue consulted upon. participation in terms of its In the case of the Nillumbik Shire influence on outcomes. Council Plan and SRP, the entire community is affected, therefore Legitimacy of the representation in the strictest sense participation process would require inclusion of all residents of the municipality. Clearly One of the key issues for Nillumbik this is not practicable. The alternative Shire is to make decisions about the is to aim to consult with a sample allocation of scarce public resources that mirrors the spread of age in a prosperous community, which groups, genders, language and expects a high degree of amenity cultural groups, socioeconomic and environmental niceness, but status, levels of education and which does not provide Council with employment, and interests of the a high rate base. Due to its structure, Council’s population. This, too, is no 90% of the rate base is domestic and mean undertaking, as it is time, skill, rates are low on a per capita basis. and resource intensive to involve a The success of the consultation wide spectrum of people in about the Council Plan and SRP can consultation on complex issues. therefore be measured by the extent to which the processes assisted in This is why consultations that require prioritising resource allocation and wide representation are often raising community awareness about advertised publicly, thereby (at least in theory) providing everyone with an
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equal opportunity to participate. In Surveys and face to face methods reality, those who do respond are are often used in conjunction. The usually people who read council difficulty lies in balancing the need publications or the local paper, those for representation with the ability to who are politically aware or those gain deeper understanding and who have a vested interest in the insight about the issues. It is often issue. While the participants in a hard to decide how much weight publicly advertised consultation – should be given to a workshop, sometimes called ‘the usual which provides in-depth information, suspects’ – are not necessarily as opposed to a survey, which has representative of the wider greater numbers of participants. community, at least the argument can be made that others, if they felt Democratic legitimacy of strongly enough, could have become public participation involved and raised their concerns. The problem with open invitation The problem is that it is not easy to workshops is in evaluating their involve a large number of people. place, scope and effectiveness. They Surveys are perhaps the preferred attract varying levels of attendance means of eliciting information and and, in terms of representation, their opinion from a large sample. They profile is patchy. Theoretically this appeal also because they can be dilemma can be framed using two quantified, thereby lending scientific key dimensions of democratic validity and confidence to the legitimacy: procedural legitimation responses received. However, and the ability of political institutions especially where complex, future- to provide outcomes. oriented and abstract planning is concerned, surveys are limited Procedural legitimation refers to the because they impose simple options way in which democratic processes on complex questions. are conducted to secure the consent of the governed (Klausen and Workshops, meetings and other face Sweeting 2002). The notion is linked to face group consultation methods to the fundamental tenets of tend to be resource intensive and representative democracy where difficult to do well. Their success general acceptance of political depends on the quality of the decisions is predicated on the participants and the skill of the principle that each vote counts facilitator. Their value is in providing equally when electing deliberative forums that can be used representatives and that, beyond to elicit qualitative information and elections, everybody has the same cast light on why opinions are held right to attempt to influence political and decisions are made. They also decision making through lobbying help Council listen to people and and advocacy. In the case of public provide assurance to participants participation in local government that they are being heard. decision making, procedural legitimation is closely linked to issues
8 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
of representativeness and are inevitably tempered by practical opportunity to become involved. considerations. As outlined in an Consultations may not require full earlier report for the Community inclusion, but should at least aim to Consultation and the ‘Hard to Reach’ involve a representative sample of project (Brackertz, Zwart et al. 2005), the municipality’s population. In something can be learned about the reality, however, due to their desired level of community complexity, consultations on major involvement in decision making from policies and strategies that affect the pluralistic and purpose based models entire municipality (e.g. Corporate of public participation. Plan, Strategic Resource Plan or Municipal Strategic Statement) are Models of public participation often carried out involving only a As outlined in the second report to small number of community councils (Brackertz, Zwart et al. members who are often not 2005), there are numerous ways in representative of the broader which community consultation, demographic. Consultations that participation and engagement can be relate to a service review or an conceptualised and evaluated. operational matter are usually aimed Arnstein’s (1969) ladder of at a subset of the municipality’s participation describes community population and do not usually require engagement from the perspective of full inclusion (though they may a community activist and places benefit from it). Even in these participation on a continuum of instances, only a small proportion of activity depending upon the range of the affected citizens take part in the influence that citizens have over consultation process. decision making. For writers such as The other key dimension of Arnstein, participation should involve democratic legitimacy is the a transfer of power from the council effectiveness of political institutions to the community, and ensure that which hinges upon the ability to final decision making is left in the deliver outcomes and address hands of the various stakeholders. emerging issues and needs as they Arnstein argues that community arise (Hanssen, Klausen et al. 2003; engagement processes that do not Klausen and Sweeting 2002). Here it make a genuine attempt to consider is not so much the the views of citizens may be representativeness of public tokenistic or even a form of participation that counts (although manipulation that will lead to a representation remains an issue), but greater degree of public cynicism. the outcomes that result. Assuming that open and transparent While the two dimensions of processes will automatically lead to democratic legitimacy are a useful an empowered citizenry is test of the validity of public problematic, however, as it raises the participation, decisions about doing question of where authority should lie and using the results of consultation in a system of representative democracy. It also ignores the issue
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of who is likely to participate and how subscribe to her normative emphasis decision making will be improved, to transfer power to citizens. given that providing opportunities for The spectrum demonstrates a variety participation may simply increase the of options that organisations have power of those who already have it. when engaging their communities. At Nevertheless, Arnstein rightly points one end of the spectrum, out that governments should be open organisations can choose to simply about why they engage the public, inform their citizens of a decision that and should not use consultation has or will be made. At the other, processes to simply justify a decision they can delegate decision making to that has already been made. the public. The IAP2 spectrum also An example of a more pragmatic and suggests a small range of techniques pluralistic model, which views public that can be used, depending upon participation as an activity that the level of involvement required of should be shaped by the policy citizens, although it should be noted problem at hand, is the influential that some can be used for a range of International Association for Public engagement levels. The IAP2 Participations (IAP2) Spectrum spectrum is useful for thinking about
10 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
Table 1: IAP2 Spectrum of Public Participation Inform Consult Involve Collaborate Empower Public Public Public Public Public Participation Participation Participation Participation Participation Goal Goal Goal Goal Goal To provide the To obtain public To work directly To partner with the To place final public with feedback on with the public public in each decision balanced and analysis, throughout the aspect of the making in the objective alternatives and/ process to decision including hands of the information to or decisions ensure that the development of public assist them in public concerns alternatives and understanding and aspirations the identification of the problem, are consistently the preferred alternatives, understood and solution opportunities considered and/or solutions Promise to Promise to the Promise to the Promise to the Promise to the the Public Public Public Public Public We will keep We will keep you We will work We will look to you We will you informed informed, listen with you to for direct advice implement what to and ensure that your and innovation in you decide acknowledge concerns and formulating concerns and aspirations are solutions and aspirations, and directly reflected incorporate your provide in the advice and feedback on how alternatives recommendations public input developed and into the decision to influenced that provide the maximum decision feedback on how extent possible public input influenced the decision Example Example Example Example Example techniques to techniques to techniques to techniques to techniques to Consider Consider Consider Consider Consider y Fact sheets y Public y Workshops y Citizen advisory y Citizen juries comment committees y Websites y Deliberative y Ballots y Focus groups polling y Consensus y Open houses y Delegated building y Surveys decisions y Participatory y Public decision making meetings
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gives all people who have an interest Methods for participant in an issue the opportunity to recruitment participate. In this way, no attempt is Although recruitment of participants made to limit participation, beyond for community consultation can be perhaps considerations based on undertaken in many ways, there are citizenship status. The benefits of only a few key options available to this form of recruitment are that all councils when deciding who should citizens or stakeholders with an take part; these are selection, self- interest are given the opportunity to selection or random selection. These take part, and can represent their options are available for consultation own interests in whatever manner is with stakeholder groups (such as provided. It is perhaps for this reason businesses, community groups or that self-selection remains a very representative organisations) and the popular method for recruiting general residential population. participants. Nevertheless, there is a significant drawback to any form of The first option is purposive selection recruitment that encourages citizens of participants based on one or more to choose themselves. As Carson characteristics. For instance, and Martin (1999:56) have particular stakeholder groups may be suggested about the traditional chosen because they are seen to council advisory committee: represent the interests of a group of people, organisation or cause. Inevitably, such committees Alternatively, they may have special attract the strongly interested expertise that will assist in making and highly educated – those decisions. Selection of participants is who want to change the way frequently also used when a things are currently done and balanced sample of population those who enjoy serving on a segments (based on factors such as committee, talking, and making age, gender, occupation, education, decisions. Meetings of advisory knowledge or geographical location) committees usually are held is desired. In each case, it is outside of business hours, so important to think about why certain members are inevitably drawn groups or individuals are being from those free to attend…A included and excluded, and whether portrait is therefore emerging of it is important to have a diverse the usual committee member: range of representatives or simply a educated, middle-aged, and diverse range of views. If it is critical male. that some groups participate, then it Clearly, the degree to which the may be necessary to use personal characteristics of participants matter methods of contact and even depends upon the aims of the incentives to improve their likelihood consultation exercise. If the aim is to of doing so. simply inform citizens of a proposal The second option is participant self- or to seek new ideas, then it may not selection which, at least in theory, matter who provides input. But if the
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aim is to understand what a cross- this technique can be very valuable section or particular segment of the as it is likely to produce a more population thinks about a particular accurate result (CustomInsight issue, then strategies involving self- 2006). If participation from some selection are inadequate and some groups is initially low, it may be other form of selection should be necessary to follow up by contacting considered. One such method is people personally to encourage them random selection. to participate. Otherwise, as Carson and Martin (1999:26) note, policy Random selection works on the makers may base their decisions on principle that citizens, organisations biased poll results. or groups have an equal chance of being selected, and is particularly It is important to note that all valuable when other methods create methods of participant recruitment the possibility of bias or conflict of involve an element of self-selection, interest. There are a number of ways as people can always refuse to take in which random selection can be part in any consultation process. used: to make decisions directly, to Nevertheless, some forms of judge opinions or to choose decision recruitment provide a much better makers (Carson and Martin chance of obtaining the input of 1999:14). For councils, the particular segments of the population judgement of community opinion is than others. These can be probably the area where random categorised as selection, self- selection can be most beneficial, and selection and random selection, and can be understood by thinking about can also be used in combination with the rationale used in opinion polls. each other at different stages of a Opinion polls do not require that consultation process. everyone in the population needs to The context makes clear that be consulted, as a relatively small community consultation as it sample of randomly selected occurred in the Nillumbik case study participants can give a statistically examined here does its best to accurate result. The key is to choose wrestle with some difficult issues the sample carefully to ensure that it about: has the same characteristics as the population as a whole. One way of • why consultation should be doing this is to have a stratified done sample that divides the general • how consultation can be made population into groups, and sets a legitimate part of democratic quotas for each group. A separate decision making random sample must be selected • how consultation can be made from each of the subgroups, rather representative. than just taking a single random sample from the entire group. The process is slightly more time consuming and will require a greater number of people to be surveyed, but
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14 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
Background to the consultation
In late 2005 and early 2006 Nillumbik Plenty River and Yan Yean Road in Shire Council conducted a series of the west to the Yarra escarpment in consultations to ascertain community the east, comprising urbanised as priorities in relation to Council’s well as rural areas. It includes the strategic commitments as outlined in townships of Arthur’s Creek, Bend of the Nillumbik Shire Council Plan Islands, Christmas Hills, Cottles 2005-09 (Nillumbik Shire Council Bridge, Diamond Creek, Doreen, 2005) and to assist in formulating its Eltham, Hurstbridge, Kangaroo SRP. The consultations provided an Ground, Kinglake, North Warrandyte, opportunity for community members Nutfield, Panton Hill, Plenty, to identify priority issues for Nillumbik Research, Smiths Gully, St Andrews, over the next three to four years, Strathewen, Watson’s Creek, Wattle consider how these link to the goals Glen and Yarrambat. of the Council Plan and discuss how The Shire covers an area of 430 resources should be allocated square kilometres and has an towards achieving identified priories. estimated population of 58,161. The In order to understand the average population density is 1.34 implications of the case study from per hectare, with most living in the the point of view of south and south-west sectors representativeness, especially in (Diamond Creek, Eltham, Eltham relation to ‘hard to reach’ groups, it is North, Research, Greensborough, necessary to consider the Hurstbridge and Wattle Glen). demographic and other Nillumbik has a large area with a low characteristics that shape Nillumbik’s population base and density community. The following short compared with other Melbourne summary is elaborated by a more Local Government Authorities detailed profile below. (LGAs) (27th out of 31).
Shire of Nillumbik3 profile summary Nillumbik Shire is located less than 25 kilometres from the centre of Melbourne; it is bounded by the Yarra River in the south and extends 29 kilometres to Kinglake National Park in the north. The Shire stretches approximately 20 kilometres from the
3 The name Nillumbik comes from an Aboriginal word used by the Wurundjeri people, thought to mean ‘shallow earth’.
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The majority of Nillumbik’s residents Communities 2005), residents are are well educated, well informed and overwhelmingly from English- characterised by strong community speaking backgrounds, and the and environmental values population is relatively culturally (Department for Victorian uniform. The community is Communities 2005). People characterised by low levels of generally feel connected, safe and disadvantage, high levels of part of the community, with low levels employment, relatively high incomes of transience contributing to their and a high proportion of home sense of stability. While being of the ownership. Nevertheless, residents opinion that multiculturalism makes of Nillumbik face challenges as the life better (Department for Victorian Shire is not well serviced by public Figure 1: Nillumbik Shire boundaries
16 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
transport and there is a divide in the The townships within the Shire are levels of advantage and not well connected by public disadvantage faced by the rural and transport, nor is there an adequate more urbanised areas of the Shire connection to wider Melbourne. (Brackertz, Zwart et al. 2005). Consequently there is a high Pockets of disadvantage persist. incidence of ownership of motor vehicles. Long commutes and work Due to its largely residential base hours for many residents mean that and relatively large average they have little time to become household size, Council has a low involved in the community; they are rate base and consequently faces time poor. Despite this, residents – resource restrictions. While rates are especially long-term residents – feel high per property, they are not high strongly connected to their per capita. This has led to prolonged community. underspending on the service and roads infrastructure over the past 4 decade and Council is at times Demographic Indicators struggling to provide services Social and Economic Indexes for equitably across Nillumbik. Adding to Areas (SEIFA)5 this is increasing pressure on the roads and infrastructure due to the Nillumbik’s high rankings on the fast growth and expansion of SEIFA Indexes show that the Shire neighbouring councils, especially has high levels of advantage and low Whittlesea. levels of disadvantage compared to the Melbourne Statistical District Nillumbik Shire is an interface council (MSD). and confronts the challenges of providing services and balancing the The Index of Relative Socio- needs of its rural as well as urban Economic Disadvantage does not populations. A mixture of rural and offset households in advantage metropolitan communities, as well as against those that are disadvantaged geographic spread and social and is therefore a better indicator of isolation, place special demands on disadvantage. Here Nillumbik ranks service provision – demands that fourth out of 31 LGAs, indicating a differ from those faced by lack of disadvantage. The index metropolitan councils. draws on attributes such as income, educational attainment, Nillumbik self-identifies as a Green unemployment and dwellings without Wedge Shire and there is a high motor vehicles, relatively lower level of awareness of environmental educational attainment and high issues. Nevertheless, within Council and the community, there is a degree 4 of tension between the advocates of Unless otherwise indicated, information development as outlined in is based on 2001 data from the Australian Bureau of Statistics (ABS). Melbourne 2030 and those who 5 For a more detailed discussion of the prioritise neighbourhood character SEIFA indexes, see Brackertz, Zwart et and environmental issues. al. (2005).
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unemployment. While Nillumbik as a lived at a different address. Five whole ranks highly on this index, years previously, 35% (42% MSD) there are areas within the Shire, lived at a different address. specifically in the east and north, that are more disadvantaged.6 On the Index of Education and Occupation, the Shire ranks tenth in the MSD, attesting to residents’ high levels of education and a large proportion of the population working in professional occupations. This is supported by the Index of Economic Resources where Nillumbik ranks sixth out of 31 LGAs, indicating relatively higher incomes and status of residential tenure (i.e. more people own or are purchasing their own home, as opposed to renting).
Transience Nillumbik’s population is relatively more stable than that of the MSD as a whole. In the previous year, 11% Table 2: SEIFA rankings for participating LGAs
Local Population Advantage Disadvantage Economic Education & Government Disadvantage Resources Occupation Authority N Rank* Index Rank* Index Rank* Index Rank* Index Rank* Boroondara 150,233 4 1,173 1 1,122 1 1,154 2 1,180 1 Nillumbik 58,161 27 1,104 7 1,108 4 1,104 6 1,079 10 Port Phillip 77,541 25 1,135 5 1,079 7 1,114 5 1,161 4 Melbourne 57,808 29 1,145 3 1,038 13 1,115 4 1,179 2 Moreland 131,359 9 995 21 985 25 981 26 1,015 15 Darebin 123,708 13 989 22 967 26 978 27 1,008 17 Whittlesea 114,082 15 949 29 962 27 977 28 927 28 Maribyrnong 57,907 28 972 27 915 30 968 29 989 21 * Out of 31 Melbourne LGAs (16% MSD) of Nillumbik residents
6 For a more detailed analysis, see Brackertz, Zwart et al. (2005).
18 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
Table 3: Demographic indicators for Nillumbik Shire compared to the MSD MSD Nillumbik Difference Transience One year movers 16% 11% -5% Five year movers 42% 35% -7% Household income Highest income quartile 25% 39% 14% Lowest income quartile 25% 13% -12% Household Couples with dependent 29% 47% 18% composition children Lone person households 23% 12% -11% Age groups 5-14 years 13% 18% 5% 65 and over 12% 5% -7% Housing tenure Home owners 70% 86% 16% Renters 23% 9% -14% Labour force status Employed 58% 71% 13% Outside labour force / 38% 27% -11% unemployed Hours worked 35-40 hours 36% 45% 9% 41+ hours 30% 22% -8% Ethnicity Overseas born 29% 14% -15% Only English spoken at home 69% 90% 21% Households with 86% 95% 9% motor vehicles Based on 2001 ABS data lowest unemployment levels of any Housing tenure LGA in Victoria (Nillumbik Shire There is a higher proportion of home Council 2006a). ownership (86%) (70% MSD) and a much smaller proportion of Household income households renting (9%) (23% MSD). When compared to the MSD, Nillumbik has a much higher Labour force status proportion of households in the The proportion of employed people in highest income quartile (39%) and a Nillumbik is significantly higher (71%) much smaller proportion in the lowest than in the MSD (58%) and a smaller income quartile (13%). proportion of residents are outside the labour force or unemployed Employment and hours worked (27%) (38% MSD). Nillumbik Compared to the MSD (36%), a consistently has the higher proportion (45%) of the Shire’s residents are working the traditional 35-40 hours a week , but
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fewer (22%) work more than 41 children and a relatively low hours (30% MSD). Typical of urban incidence of lone person households areas with a small industrial base, (12%) (23% MSD). This is reflected the most common occupations in the fact that the average include clerical, sales and service household size is 3.12. A four person workers (education, health and household is the most commonly community services), professional occurring household size in (finance, insurance and business Nillumbik. services), and tradespersons Nillumbik has a relatively young (Nillumbik Shire Council 2006a). population, with 18% in the 5-14 There are limited opportunities for years age group and only 5% being local employment within Nillumbik. 65 or over. However, the biggest Approximately four out of five of the projected changes are increases in Shire’s population travel to work the 50-69 age group, which is outside the municipality. The top two expected to double by 2021 destinations are Melbourne and (Nillumbik Shire Council 2006a). This Banyule, followed by Whittlesea, is also due to the fact that Nillumbik Darebin and Hume. The vast majority has the highest life expectancy for (95%) of local businesses employ males (85.2 years) and the second fewer than 10 persons (Nillumbik highest for females (86.2 years) out Shire Council 2006a). of all of Victorian LGAs (Nillumbik Shire Council 2006a). Journey to work Nillumbik has a much higher Country of birth proportion of households with motor Nillumbik’s population is relatively vehicles (95%) than the MSD (86%). homogenous. Only 14% of residents The average two way journey to work were born overseas (29% MSD). The is about 64 minutes for Nillumbik majority of these come from English- south/south-west and about 80 speaking countries (5% from the minutes for the more rural areas. The United Kingdom and 1% from New problem is exacerbated by the limited Zealand), with Italians and Germans availability of public transport. Only (each 1%) forming the other two 6% of the Shire’s working population major migrant communities in the use public transport as their area. Consequently, 90% (69% preferred mode of travel to work, MSD) of Shire residents speak only compared to 7.5% for the MSD and English at home. The largest non- about 10% for inner metropolitan English-speaking language groups LGAs (Nillumbik Shire Council are Italian (2%) and Greek (1%). 2006a). Indicators of community Household Composition strength Nillumbik has a high proportion In 2005 the Department for Victorian (47%) (23% MSD) of households Communities published its Indicators made up of couples with dependent of Community Strength at the Local
20 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
Government Area Level in Victoria. Nillumbik recorded higher results than the state average for 10 of the 15 indicators, including perceptions of: • ability to get help from family, friends and neighbours • feeling safe in the street alone after dark • being a member of an organised group • attending community events • feeling multiculturalism makes life better • ability to raise $2,000 in two days in an emergency • liking living in their local area (Nillumbik Shire Council 2006a). These results point towards a connected community where residents are able to benefit from good relationships with their family, friends and neighbours, feel safe, and care about their local environment.
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reach depends on the issues Who is hard to reach in consulted upon, the consultation Nillumbik? tools used and the way in which they The demographic profile presented are asked to contribute to the above shows that Nillumbik has a process. Some segments may be relatively homogenous community able to be reached if the right tool with low levels of disadvantage, low and approach is used, while others levels of transience, and where are willing to attend if special people generally feel safe and provisions are made for them, e.g. connected. Nevertheless there are offering childcare or transport. segments of the Shire’s population Consultations on strategic issues that are potentially hard to reach face additional complications based on their social, demographic because of their abstract and future- and geographic characteristics: oriented nature, which means that • people who live within the less many residents may be disinclined to advantaged areas of Nillumbik become involved as they do not see as identified by the SEIFA the relevance to their own lives or indexes, primarily in the north feel that they have anything to and south-east contribute. The endemic problem is that it is just these high level strategic • people in rural areas who are issues that affect the entire more geographically isolated community, adding weight to the and are not as well connected requirement that participants be to the service infrastructure representative of the Shire’s wider • young people, who make up a population so that all voices can be large proportion of the Shire’s heard, providing a legitimate basis population, and who are for decisions made as a result of difficult to engage unless community input. targeted specifically using appropriate methods There is no ‘one size fits all’ method of public participation. Rather, a • time poor residents who combination of consultation methods spend much of their time is needed to engage different commuting and working segments of the community, outside Nillumbik including those unlikely to get • parents with young children involved unless targeted. who have little time to attend face to face consultations and Melbourne 2030 who make up a large The State Government’s Melbourne proportion of the population 2030 plan will continue to affect • Socially isolated persons and many planning and development those who lack access to issues in Nillumbik, and has in the personal transport. past divided the community on such The degree to which these issues. Melbourne 2030 aims to population segments are hard to drastically alter the traditional pattern
22 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
of the city’s urban development, by evident in the results of recent nominating principal and major mixed Council elections. In November use activity centres in the existing 2004, the field was hotly contested metropolitan area, and introducing a with a record 114 candidates legislated urban growth boundary. standing. The results saw only one The existing metropolitan area is sitting member returned. Andrew nominated by the government to Rowe of the Victorian Local contain 70% of the planned 620,000 Governance Association new dwellings by 2030, with the commented, ‘There’s been a clear remainder located in development pro- and anti-development argument corridors on the urban fringe. The in Nillumbik, and it seems the new dwellings will constitute a 50% community has taken Council in a increase on the current 1.2 million more community direction’ (Khadem dwellings, three-quarters of which and Boulton 2004). are detached. Moreover, Identification as a Green Wedge implementation of the plan will result Shire is core to the Shire’s vision for in a large increase in the number of itself: new dwellings in activity centres, from 24% to 41% (Buxton and Council’s vision is to lead The Tieman 2005:141). Despite the Green Wedge Shire in massive urban consolidation environmental best practice and envisaged, the plan sees this as foster an engaged, healthy and occurring without detriment to the culturally vibrant community character or amenity of established (Nillumbik Shire Council 2005). residential areas due to the This is based on Nillumbik’s natural application of Rescode, the medium heritage and water catchment areas density housing code (Melbourne (Diamond, Arthur’s and Watson’s 2030 Principles). Creeks catchments as well as part of Melbourne 2030 identifies the Plenty River’s eastern metropolitan Melbourne as having a catchment). According to the Council network of around 1,000 activity Plan, Nillumbik’s status as a Green centres of various types and sizes. Wedge Shire is geographical, They are focal points for the environmental and philosophical community and meet a wide range of (Nillumbik Shire Council 2005). needs. Within Nillumbik, Eltham and The term Green Wedge Shire also Diamond Creek are designated as appears in Melbourne 2030 where it major activity centres. These is used to describe 12 non-urban townships, together with Hurstbridge, areas that surround the built-up face the challenge of trying to retain areas of Melbourne. These green their distinctive local character in the wedges are located outside the push towards medium density urban growth boundary of Melbourne development. and include areas set aside for Community concern about planning conservation, recreation, agriculture, and development issues has been airports, sewage treatment plants
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and quarries. The areas of Nillumbik issues (Marston, Morgan et al. which are located outside the urban 2003:9). growth boundary of Melbourne form Along with other interface part of a conservation, agricultural, municipalities (Wyndham, tourism and recreation green wedge Whittlesea, Melton, Hume, Yarra with a strong environmental Ranges and Mornington Peninsula), sustainability focus. Nillumbik faces a number of unique In referring to itself as a Green challenges for Council service Wedge Shire, Nillumbik sets the delivery and community consultation: context within which it wishes to be The number one issue for understood in relation to wider service provision from my Melbourne. It sees its intrinsic value experience is the greater need as linking the urban and rural areas, and proportion of socially and preserving the natural areas that geographically isolated people in surround the city and providing the the outer rural areas of this shire lungs of Melbourne. (Marston, Morgan et al. 2003:9). Being a green wedge shire brings In their study of Human Service special challenges. Maintaining a Gaps at the Interface, Marston, quality natural and built environment Morgan et al. (2003:92) identified requires major expenditure on four key differences between environmental planning, protection Interface and other municipalities: and preservation of natural areas, and support for a range of • each interface municipality community facilities and programs has a mixture of both rural and which promote environmental metropolitan communities objectives. These costly activities • geographic spread and social focus on large areas of public land isolation are key features of which generate no rate revenue. the interface Interface council • traditional models of service delivery are not appropriate to Due to its geographic location at the needs at the interface interface between metropolitan • the interface is in transition Melbourne and rural Victoria, and this places demands on Nillumbik faces a series of special infrastructure which are not challenges: present in other municipalities. We’re at the interface between This unique social and spatial bush and city and this means character – the city on one hand and there’s a mix of urban and rural the country on the other – means communities. While there might that Nillumbik has to plan for the be a high level of activity, with different dynamics of growth and lots of demand for growth and demand for human services of its infrastructure, there’s also the urban and rural populations. The pressure of environmental Shire has quite concentrated
24 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
populations, close to the centre of have not kept pace with state services, but also faces the averages or real costs – in the past challenge of providing adequate 10 years Nillumbik’s rates have services to small numbers of increased on average by 4.1% per residents who live further away and annum, the seventh lowest increase in more isolated settings. Financially in the state (average 6.5%) this means that there is a high cost (Nillumbik Shire Council 2006a). The associated with providing these larger than average household size services and that there are few creates additional pressure for economies of scale (Nillumbik Shire Council because it results in a lower Council 2006a). rate base. Interface councils also face Due to these financial restrictions, difficulties in accessing funding. They Nillumbik is not a high spending are frequently excluded from council. A benchmark financial applying for rural and regional analysis of 17 comparable LGAs in funding programs to deliver services 2003-04 showed that Nillumbik to their non-urban areas (Marston, ranked fourth lowest in expenditure Morgan et al. 2003; Nillumbik Shire per capita. Larger than average Council 2005). The characteristics of household sizes mean that three to the Nillumbik population and high four persons per rating assessment ratings on health and welfare need to be serviced, compared to indicators translate into poor other LGAs where the ratio is only eligibility for specific purpose two persons. Total Council government grants which target expenditure per capita was $785 for areas of high social need. Although Nillumbik, compared to a median of 90% of Nillumbik’s land is non-urban, $1,151 for the 17 councils. The the Shire is classified as urban by situation is compounded by the loss central government and is therefore of general purpose grants, which ineligible for significant amounts of means that Nillumbik faces a government funding going to rural reduction of up to $2 million over a and regional councils (Nillumbik four year period (Nillumbik Shire Shire Council 2006a). Council 2006a). The pressure of the past decade to Financial issues keep rate increases low, combined Nillumbik’s financial issues stem from with an aging and poorly maintained the fact that it has a relatively low infrastructure, has resulted in rate base. Less than 10% of rate inadequate funding to many revenue comes from commercial or community assets. In 2003-04 industrial sources and consequently Nillumbik ranked last out of the 17 Council is highly dependent on comparable councils, with a per residential rates. Unlike inner urban capita expenditure of only $17 LGAs, the Shire derives no (median $170). This deficit requires substantial income from parking fees significant budget commitments over or fines. In addition, rate increases the next five to ten years to restore
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roads, streets, drainage systems, generate revenue and consequently parks, reserves, recreational facilities this limits the extent to which new and community buildings so that they major capital projects and improved reflect contemporary standards. services can be funded (Nillumbik Shire Council 2006a). Other critical areas relate to the inadequacy or lack of public Consequently, difficult decisions transport, the pressure put on the about prioritising expenditure need to local roads and infrastructure due to be made. A key issue for discussion population growth within the Shire is how to strike the balance between and in neighbouring municipalities the level of residential rates paid and (notably Whittlesea) and the ensuing the high expectations of council environmental, pressures. services, facilities and programs within a municipality with a fairly Implications for resource affluent community, but which has planning limited resources to provide services to those at the margins and in the Council provides a wide range of rural areas of the Shire. services to the community, including public health and safety, community The significance of the consultation services, planning and environment, on the Council Plan and SRP in this leisure and recreation, infrastructure context is that Council needs to get and assets, and business support residents’ input about choices and and economic development priorities for expenditure within (Nillumbik Shire Council 2006a:7). budget constraints. In particular it The revenue to provide these needs to raise public awareness services is generated through about Council’s financial situation property rates, fees, charges and and the need to increase revenue if it government grants. Due to the is to maintain and improve the level characteristics of Nillumbik Shire of services provided. outlined above, there are significant limitations on Council’s ability to
26 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
Consultation on the Nillumbik Strategic Resource Plan
The consultation on the Nillumbik representative, and the confidence Shire Council Plan 2006-10 and the with which decisions can be made SRP has to be understood in the and priorities set on the basis of what context of the particular issues facing the community says. Council – a relatively well off, well Community consultation on the SRP educated, well connected and and Council Plan is a statutory environmentally aware community requirement prescribed by the that nevertheless includes pockets of Victorian Local Government Act 1989 disadvantage and faces challenges which stipulates the production of a in providing services for the rural and Council Plan outlining objectives and urbanised areas alike and that is priorities over a four year period. The limited in its ability to raise financial SRP, which is to be reviewed resources. annually, complements the Council More generally, the consultation Plan and details the resources serves as a case study of a high required to achieve the strategic level strategic consultation on issues objectives. In 2006 Nillumbik Shire that affect all members of the Council committed to developing a community. In this context, issues comprehensive four year SRP that about Council’s ability to involve a goes well beyond the statutory representative cross-section of the requirements (Nillumbik Shire population become particularly Council 2006a). important because the legitimacy of To this end Council’s Social Planning decisions made as a result of such unit, together with a consultant, consultations rests on the ability to Michael Tierney from Tierney demonstrate that decisions were Andrews Consulting, planned a made according to community series of nine community workshops, priorities. Vexedly, it is just when with further opportunities for representativeness of participants is community input using surveys to most important, as in the case of ascertain priorities in relation to high level consultations, that people Council’s strategic commitments as are least likely to want to become outlined in the Nillumbik Shire involved. The complexity, abstract Council Plan 2005-09 (Nillumbik nature and future-oriented nature of Shire Council 2005). It was hoped the issues can act as deterrents that community workshops would: because their relevance to people’s lives is not immediately apparent or • [Identify] community views because people feel they have regarding priorities for the nothing to contribute. The interesting future of Nillumbik, questions here are which sections of infrastructure (roads, footpaths the community respond to which and buildings) and services to types of consultation method, the the community extent to which participants are
27 Consultation on Council Plan and Strategic Resource Plan
• [Test] community response to neighbourhood based model in Council’s current priorities as different locations around the Shire. outlined in the Council Plan Timing of the workshops was 2005-09 scheduled to include daytime as well • [Encourage] informed as evening sessions on weekdays as community debate regarding well as weekends to enable a range possible constraints involved of people to attend (Table 4). in achieving our goals for In addition to eliciting community Nillumbik preferences about Council’s strategic • [Agree] about how we can and financial priorities, attitudes and best …work together and ideas about community continue to ensure that we are engagements would also be tested. listening to and hearing each Questions for discussion included: other (Nillumbik Shire Council 2006a). • What do you think are the key issues for Nillumbik over the The workshops were conducted in next three to four years? December 2005 and February/ March 2006. The survey was • What is Council’s role in available on-line and through the meeting community Nillumbik News in February 2006 expectations regarding (Appendix 5). Outcomes from these representation and advocacy, consultations were intended to inform planning, infrastructure (roads, the following year’s Council Plan and footpaths, buildings, parks etc) the SRP. and services to the community? Workshops • What priorities should Council The workshops were planned jointly focus on over the next three to with Council’s Social Planning Unit four years and how should and the consultant. In the planning these be reflected in our stages there were discussions about financial/ the possibility of having sessions that resource planning process? would be targeted at specific • How can Council and the segments of the population using community improve the way demographic information and we work together? (Nillumbik knowledge of specific ‘hard to reach’ Shire Council 2006a) groups. Ultimately a decision was made in favour of nine publicly Promotion advertised workshops that would be Advertising for the sessions used a open to all through self-selection. range of media in an effort to These were planned around a maximise participation.
28 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
Table 4: Schedule of consultations Day/date Time Location/venue Attendance Numbers Mon 5 Dec 12.00-2.30 Hurstbridge Community Centre 23 pm Wed 7 Dec 7.30-10 pm Emergency Operations Centre / Kangaroo Cancelled Ground Hall Thu 8 Dec Midday Eltham Community Reception Centre 19 Wed 22 Feb 7.30-10pm Panton Hill Living and Learning Centre Cancelled Thu 23 Feb 7.30-10 pm Greensborough Council offices 12 Sun 26 Feb 12.30-3pm Hurstbridge Community Centre 6 Mon 27 Feb 7.30-10pm Kangaroo Ground Emergency Operations 6 Centre Wed 1 Mar 7.30-10pm Panton Hill Living and Learning Centre 15 Thu 2 Mar 7.30-10pm Eltham Community Reception Centre 10 Fri 3 Mar 12.30-3pm Warrandyte Community Centre 3 Wed 8 Mar 7.30-10pm Yarrambat Golf Club 6 Total attendance – all sessions 100
The workshops were advertised in 3) and asked people to register their the November issue of the Nillumbik interest by calling the number News (Council’s newsletter, which is provided or by sending an email. distributed to all residents of the Those who registered their interest in Shire) in the November 2005 and attending the workshops were sent February 2006 editions, and in the an information kit in the mail. This local paper (Diamond Valley Leader, contained: 22 November 2005). In addition, a flyer was sent to people on Council’s • background to the specific mailing list (N=300, which consultation includes representatives of • key questions for discussion community groups and key • background demographic organisations Council is aware of) in information about the Shire mid-November, with a follow-up letter in mid-January. There was also a • a summary of key social and media release.7 Promotional material economic trends informed the community about the • information about services purpose, time and location of the and programs Council proposed workshops (Appendixes 1- provides • a summary of Council’s financial issues, including 7 Email communication from Jacky Council budget highlights Close, 23 Nov. 2005.
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• a summary of Council’s recent and emailed potential participants consultation and statement of and who also attended the workshop. commitment to consultation A session at Panton Hill scheduled • a summary of the Council for 22 February also had to be Plan. postponed due to low registrations but was well attended when it was Internally the workshops were held on 1 March 2006. promoted by the Social Planning Coordinator who informed staff via Reasons for low attendance may email that the consultation would be have to do with the timing of the taking place and suggested that they workshops in December and should make sure specific interest February when people are groups were aware of the workshops preoccupied with the Christmas and and could have their say.8 As a holiday season. More likely, result, Youth Services mentioned however, reasons are linked to the that they were interested in talking fact that community members are about how to engage young people generally reluctant to become and suggested the use of their involved in consultations around mailing list.9 Subsequently an email future-oriented, high level strategic about the consultation was sent to documents.10 This reluctance can be 3,000 people on this list. partly explained by the complexity and multi-faceted nature of some Although the workshops were widely strategy documents. People often do advertised, it was sometimes difficult not see the relevance of such to get people to attend them. planning to their own lives and can Attendance varied from three to 23 to find it difficult to connect with the participants, with a total of 100 abstract nature of the concepts persons attending the consultations consulted upon. The language used (Table 4). The workshop on 7 to describe these plans can also be a December was postponed due to low deterrent and some community registration numbers. The Diamond members feel they need a Creek area had been engaged in ‘translator’. Consequently, involving a extensive community consultation in wide range of community members November-December for its in such planning exercises involves proposed area structure plan, considerable time and resources and perhaps leading to consultation frequently requires active recruitment fatigue. By contrast, the workshop in through personal contacts and Hurstbridge on 5 December had a persuasion. This was also evident in record 23 attendees, perhaps due to Nillumbik where workshops that had an active recruiting drive by one of the highest number of attendees the local councillors who had called were those where councillors played an active role in recruiting 8 Email communication from Jacky
Close, 23 Nov. 2005. 9 Email communication from Jacky 10 Refer also to Brackertz, Zwart et al. Close, 23 Nov. 2005. (2005).
30 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
participants through their personal programs/services, contacts (Hurstbridge and the first finances/resources? Eltham workshop). Each question was discussed for approximately 45 minutes, with key Workshop format points being documented on The workshops were run by the butcher’s paper. For groups of eight consultant with assistance from or more persons, at the conclusion of Council’s Social Planning Unit. They discussions about the second varied slightly depending on the question, the consultant used a number of attendees, but generally ranking technique (Nominal Group followed this format. A welcoming Technique) to establish the group’s speech was given by the mayor (or priorities from the notes taken during other councillors, who attended the session. Each participant was almost all workshops), setting the given five differently coloured sticky scene for the discussions. Following dots, with allocated values from one this the mayor (and/or councillors) to five points (e.g. gold = five points, assumed a listening brief. red = four points, etc.). As a way of Participants were then asked by the indicating their priorities, participants consultant to briefly introduce were asked to rank the discussion themselves, stating their name, any items captured on the butcher’s organisations they were part of or paper by sticking a dot next to those represented, and what they saw to they considered important. At the be the main issues for the workshop. conclusion of this, the facilitator The consultant who was assisted by added up the votes for each two Council employees, then asked discussion item and compiled a list of the group: the issues considered most important • What do you think the major by the group. These were then priorities for the Nillumbik summarised on a separate piece of Shire community are over the paper and presented back to next three to four years participants for evaluation and (challenges, issues, approval. In most instances, opportunities)? participants agreed that the issues identified using the technique were • What should Nillumbik Shire the most important. On occasion, Council’s major priorities over further issues were added. For the next three to four years be smaller groups, discussion and to help achieve preferred identification of priorities was future/s, e.g. Council relatively informal, with key points roles/governments, recorded on butcher’s paper but not infrastructures/assets, voted for.
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Figure 2: Workshop attendants by age and raised in discussion prior to the gender (N=34) voting taking place, but time constraints made this impractical. 30% Others were opposed to ranking 20% issues and felt that this was an
10% inappropriate form of decision making. After some persuasion, 0% however, all attendees took part in 35 - 44 years 45 - 54 years 55 - 64 years 65 & over the ranking process and at the Female Male conclusion of the sessions were Discussions tended to be satisfied that the most important constructive and, in the majority of matters had been identified workshops, participant contributions appropriately. were thoughtful and of high quality. In some of the larger workshops, Representativeness of notably those where participants had workshops been actively recruited through councillors’ personal contacts, At the time of the workshops, no discussions were liveliest and most detailed demographic data was politicised. Attendees tended to be collected from participants. However, already socially and politically active following the workshops, participants and had strong viewpoints about were sent a questionnaire asking their preferences. Rather than them to evaluate the consultation contributing to a constructive process. A total of 82 questionnaires discussion of the questions posed, were sent out and 34 completed some took to political grandstanding, surveys were returned, giving a thereby drowning out the voices of response rate of 41.5%.11 A less politicised attendees who felt breakdown of demographic overlooked. On occasion, the characteristics shows some startling facilitator struggled to contain the asymmetries (Fig. 2). While 18 debate and emotions ran high. respondents were female and 16 were male, providing a fair balance Another point of contention was the of genders, no surveys were ranking technique. Many participants felt confused by the process and found it hard to commit priority to any Figure 3: Age cohorts one issue. Sometimes it was felt that there was overlap between the 50% 41.2% issues captured on butcher’s paper. 40% 29.4% 30% Therefore committing votes to one 20.6% particular issue, rather than a related 20% one, was effectively splitting the vote 10% and would result in a lower ranking. 0% 11 Younger women Older women Older men This could have been remedied if Data from the questionnaire supports researchers’(35-44 years)observations(55+ years) at the(55+ years) there had been a summarising and N=7 N=10 N=14 workshops about participants’ consolidation process of issues demographic make-up.
32 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
received from persons under the age the demographic spread of those of 35, and of the respondents in the who actually attended is limited and 35-44 year age group (21%), all weighted towards older and retired were female. The majority of persons. Most striking is the absence respondents fell into the 55 years of the younger demographic. The and over age group (71%), with only figures become even more significant minor differences in the number of when it is considered that the highest men and women in this category. proportion of households in Nillumbik Overall, three main age cohorts is made up of couples with emerged (Fig. 3): xx women aged dependent children (47%), a 35-44 (21 %), women aged 55 years demographic that was not well and over (29%), and men aged 55 represented at the workshops. No years and over (41%). men under the age of 45 attended, indicating perhaps their heavy work It is not surprising, then, that 44% of commitment and long hours spent respondents indicated that they were travelling to and from work (67% of retired, with 24% being in full-time Nillumbik residents are in full-time work and a low 3% each being work).12 students and full-time parents/carers. As a result they may not be None of the respondents indicated so dependent on Council services that they spoke a language other and perhaps choose to spend their than English at home, which is available leisure time with their families rather than engaging with consistent with the overall demographic make-up of the Shire the wider community. Younger where 90% of residents speak only women, especially if they are English at home. mothers caring for young children, tend to be more frequent users of Council facilities and therefore have Figure 4: How did you hear about the workshops? a greater vested interest in having a 15 say about Council services. 15 The voices of young people of school 10 8 age were largely absent from the 7 workshops although they make up a 5 22 significant proportion of the Shire’s 1 0 population and despite the effort to Local paper Council Email Word of Letter from Contact from inform them about the consultation newsletter mouth council council using the Youth Services email list. Most respondents heard about the No attempts were made to engage workshops through the local paper, young people through schools, closely followed by word of mouth or although the possibility had been a personally addressed letter from raised at early planning sessions for Council (Fig. 4). What this means in the workshops. From participant terms of accessibility of the workshops is that while respondents rated workshops to be accessible, 12 Compare Brackertz, Zwart et al. (2005:158).
33 Consultation on Council Plan and Strategic Resource Plan
observation it is known that only two Council’s mailing lists), did not feel teenagers attended workshop comfortable attending a workshop sessions; it is not clear whether this format, did not think their contribution was as a result of the mail-out or was valuable or would make a whether they responded to general difference, did not see the need to advertising. A Council staff member attend, needed further commented that ‘young people look encouragement or support to attend, towards the city and do not see or the timing or location was not Nillumbik as their future’. Reasons convenient. Consequently, one may for this have not been fully explored, conclude that the workshops were but young people may not have felt accessible only to a limited section of that a consultation on the SRP was the Shire’s community and the of relevance or interest to them, spread of attendees was not possibly because they did not representative of the Shire’s understand potential implications for population. their life experience within the Shire. The need to engage a wider and While no persons under the age of more representative sample of the 35 returned the participant evaluation community was also noted in the questionnaire, participant consultant’s report which observation of the workshops shows recommended the use of that a few (though not many) in this complementary approaches, age group attended. Reasons for the including surveys and targeted low numbers are speculative, but one consultations in emerging priority may assume that many of them have areas, involving younger people heavy work commitments or are (through schools and youth caring for young families and have networks), road and public transport little time to spare for community users, and community arts and consultation. A few mothers who cultural groups. To this should be attended the workshops brought their added socially and geographically young children/toddlers with them. isolated persons, people in rural This shows that mothers felt areas and people in their 20s to early comfortable attending together with 30s. This supports the finding that their children; however, it also hints community consultation, especially at a lack of options for childcare when representativeness of during the workshops and may have participants is important to add meant that mothers were not able to legitimacy, requires careful planning fully participate, as they had to also and multiple approaches to include a placate and entertain their offspring. wide sample of community members. In particular, this highlights the point Reasons for the absence of a more that self-selection of participants representative sample of community needs to be complemented with members may be that they did not purposive sampling and active hear of the workshops (perhaps recruitment to achieve a younger residents do not read the representative balance. local paper and are not included on
34 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
Participant Evaluation
In addition to eliciting information and they were asked to complete a ideas from the communities, questionnaire. The questionnaire consultations also aimed to engage was adapted from the framework and educate people and make them developed by Rowe, Marsh and feel they were listened to. To Frewer (Rowe and Frewer 2000; evaluate what participants thought Rowe, Marsh et al. 2004) and asked about this aspect of the consultation, information about the suitability of the Table 5: Criteria and questions for participant evaluation Criteria Definition Questions Accessibility The participation exercise should be held The location of the workshop was at a time and in a location that makes it convenient for me (e.g. public easy for participants to attend. transport available, disability access, safety, parking). The timing of the workshop made it easy for me to attend. Resource Participants should have access to the Information at the workshop was accessibility appropriate resources to enable them to presented in a clear and successfully fulfil their brief. understandable way. Task definition The nature and scope of the participation I am clear about my role in the task should be clearly defined. consultation process. Structured The participation exercise should The recommendations that came out decision making use/provide appropriate mechanisms for of the workshop reflected the structuring and displaying the decision- discussion. making process. Opportunity to Participants should have the opportunity At the workshop there was enough contribute to express their views and concerns and time for participants to have their say. all participants should be given a fair At the workshop I was given enough hearing during the consultation process. opportunity to make a contribution and voice my concerns. Representative- The participants should comprise a I think everyone affected by the issue ness broadly representative sample of the consulted upon has a fair opportunity affected population. to participate in the consultation. Independence The participation process should be I thought the workshop was well conducted in an independent (unbiased) facilitated. way. The workshop was run in an unbiased way. Influence The output of the procedure should have I think Council will listen to community a genuine impact on policy. views. Transparency The process should be transparent so I am clear about the purpose of the that the relevant population can see what workshop. is going on and how decisions are being made.
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Figure 5: Participant evaluation of the workshops
100% 91% 91% 94% 82% 82% 80% 72% 68% 70% 63% 60%
38% 40%
18% 15%18% 16% 20% 10% 13% 7% 9%9%9% 9% 9% 6% 1% 0% 0% 0% 0%
e ty te cy lity bu nce ibi ri sibili fluenc aren In p ccess cces A ans e a Task definition Independe Tr rc rtunity to cont esou Representativeness R ppo O Structured decision making Agree Neither Disagree workshop format as a deliberative structuring of the decision-making forum in which all have an equal process had reflected the content of chance to contribute and be heard. the workshop contributions (82%). A The questionnaire used a set of key high number of participants agreed criteria to assess multiple dimensions that the consultation was run in an of the participation process. Table 5 independent way (70%) and that they summarises the key criteria and had an opportunity to contribute questions that were used (Appendix during the process (72%). More 4). Participants were asked to respondents agreed than disagreed respond to the questions by circling that those participating were broadly preferences on a Likert scale Figure 6: from 1 to 5 (strongly agree to Participant perception of tansparency, task definition strongly disagree). & resource accessibility 100% Summary data for the key criteria 94% 80% 91% of successful consultation shows 82% that participants rated most 60% aspects of the workshops highly 40% 20% 9% 9% to very highly (Fig. 5). There was 6% 0% 0% 9% near unanimous agreement that 0% Transparency (N=33) Task Definition (N=34) Resource Accessibility the process had been (N=34) transparent (94%), the task Agree Neither Disagree clearly defined (91%) and the workshops had been accessible representative of the wider (91%). A very high percentage also community (68%) and that they thought the resources required for would be able to influence decision them to participate successfully had making as Council would listen to been accessible (82%) and the their views (63%).
36 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
Figure 7: Participant perception of representativeness of other groups within the community that did not have an opportunity to 100% 86% 86% 80% participate. 60% 40% 40% Considerable 40% 20% difference between 20% 14% 14% 0% 0% women’s and men’s 0% perceptions of the Young women (N=7) Older women (N=10) Older men (N=14) consultation process Agree Neither Disagree were also expressed in relation to their Asked whether they were clear about ability to contribute the purpose of the workshops during the workshops, the degree to (transparency), their role in the which the recommendations arising consultation (task definition) and from the workshops reflected the whether they thought that the discussion, and their ability to information provided to them during influence the final outcome of the the workshop was presented in a consultation (Fig. 8). clear and accessible way (resource In aggregate, 72% of all respondents accessibility), for both genders, a agreed they had an opportunity to very high number of respondents contribute to the consultation (Fig. 5). were inclined to agree (94%, 91% However, when divided into age and 82% respectively) (Fig. 6). cohorts, differences emerge. A full When respondents were asked 60% of older women disagreed or whether they thought that everyone were unsure that participants had affected by the issue consulted upon sufficient time to have their say, and had a fair opportunity to participate in 40% disagreed or were undecided the consultation process whether they themselves had (representativeness), 68% agreed, opportunity to voice their concerns but interesting differences emerged in perceptions Figure 8: Participant perception of opportunity to contribute between the age cohorts
(Fig. 7). While 86% of older 100% men and 86% of younger 86% 86% 86% 80% 71% women agreed that 60% everyone affected had a 60% 50% 40% chance to participate, only 40% 30% 40% of older women 20% 14%14% 14% 14% 10% 10% 7% 7% 0% 0% thought this was the case 0% and 40% disagreed with Younger Older women Older men Younger Older women Older men the statement. This could women (N=7) (N=10) (N=14) women (N=7) (N=10) (N=14) Time for participants to have their say Opportunity to voice my concerns indicate a greater Agree Neither Disagree awareness by older women
37 Consultation on Council Plan and Strategic Resource Plan
Figure 11: Participant perception of independence workshop passed the criterion Figure 9: Participant perception of structured decision making of independence (was well
100% facilitated and run in an 100% 100%83% 86% 100% 71% 100% unbiased way), the majority of 80% 60% 80% 50% 60% 40% older women disagreed or were 40% 30% 60%17% 14%14% 14% 10% 60% 10% undecided that it was well 20% 0% 0% 0% 0% 0% 40% facilitated (60%). Only 40% of Younger Older Older men Younger Older Older men 30% older women thought it was well 20%women women (N=14) women10% women (N=14) 0%0% 0% 0%(N=6) (N=10)0% (N=7) (N=10) run, while 83% of younger YoungerWell facilitatedwomen (N=7) Older women Was (N=10) run in an unbiased Older men way (N=14) women and 71% of older men
Agree NeitherAgreeDisagreeNeither Disagree thought this was the case. Older women also disagreed or (Fig. 8). This contrasts starkly with were undecided whether the the figures for the other age cohorts, workshop was run in an unbiased which showed very high levels of way (40%), while all younger women agreement on these items. (100%) and most older men (86%) thought this was the case. Older women were also less likely to agree that their contributions were Participants’ general comments on adequately reflected in the the workshop showed that they were recommendations that came out of pleased to have been given the the workshops, with 40% disagreeing opportunity to contribute and put their or being unsure. This contrasts ideas to Council. While there was sharply with the perceptions of some scepticism about whether their younger women and older men, who suggestions would be taken up by all agreed the recommendations Council, most were optimistic that reflected the discussion (Fig. 9). this would happen. When asked whether they thought Workshop outcomes Council would listen to their views, a distinct difference in perception While the consultation workshops emerged between the genders. Only were being undertaken, summaries 47% of women (regardless of age of each workshop were posted on group) thought their contribution Council’s website as they became would make a difference, while Figure 10: Participant perception of influence on 80% of men were confident this decision making was the case (Fig. 10). 100%
80% Perhaps the divergent ways in 80%
which the different age cohorts 60% 53% 63% and men and women perceived 40% 47% 38% the consultation process were 20% partly due to their perceptions of 20% 0% 0% 0% how the workshops were 0% facilitated. While 70% of all Female (N=17) Male (N=15) Persons (N=32) respondents thought the Agree Neither Disagree
38 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
available. Upon conclusion of the 4. Significant improvement in workshops, a final report was current public transport/ provided to Council by the community transport options. consultant. 5. Strengthened partnerships and The report summarised community cooperative planning between responses in relation to Council’s Council and local community four major strategic objectives: 1. networks. environment (natural, built, cultural; 6. Increased support for 2. health and wellbeing; 3. visual/performing arts, crafts and community assets; and 4. cultural activities. governance and community engagement. The report noted that: 7. Building/reinforcing community health and wellbeing including Analysis of responses shows support for: bicycle/pedestrian that environmental trails; community services/ considerations dominated support for older residents; discussions. Numerically there community health centres; were significantly more neighbourhood houses; and comments relating to the natural, increased range and diversity of built, and cultural environment youth facilities. than for the other three Council Plan strategic goals combined 8. An integrated planning approach (Tierney 2006:2). which balances population/ development pressures and Eight key community priorities were economic development with identified by the report: needs of local communities 1. Promotion and protection of the (Tierney 2006:1) Shire’s natural environment/local In relation to the thorny issue of character – through reaffirming Council’s financial sustainability and Council commitment to the ‘green ability to deliver services, the report wedge’ vision and effective noted that: planning controls. There was almost no adverse 2. Promotion and protection of local comment in any of the community identity, including the workshops regarding the recent ‘village character’ of the Shire’s significant increases in diverse local communities. rates/charges introduced by 3. Effective management of Council in the 2005-06 roads/traffic issues throughout the budget…A recurring theme was Shire and in specific local that although most participants communities – including see the current residential rate congestion, pollution, safety, level as comparatively high, they lengthening journeys to work, and are seen as representing ‘good reduced amenity. value’ in terms of reinforcing the local environment, supporting
39 Consultation on Council Plan and Strategic Resource Plan
local amenity, and providing considerable information gaps. On essential community facilities. numerous occasions, workshop Overall, there was support for attendees suggested the need for a moderate rate increases over certain service or facility, only to be the next three-four years to told by other participants that it was finance improvements in already being provided. Numerous community assets, infrastructure opportunities for providing additional and services – provided Council resources to community members continued to ‘sell the case’ in through better use of existing terms of finding community facilities were also raised, such as needs (Tierney 2006:2). the option of using school rooms after hours, or making better use of Participants’ awareness of Council’s community halls as dance or need to increase revenue to be exhibition spaces. A number of the sustainable was matched by their workshops suggested that there was understanding that rate increases a need for an information hub where would need to be ‘sold’ to the community groups and Council could community through education about exchange information about groups, revenue issues. Effectively this services and facilities available in means that workshop participants Nillumbik. It also became apparent understood the need to prioritise that the Nillumbik News and other expenditure according to practical Council information were not and strategic needs and that it was delivered to all areas within the unlikely there would be major new Shire, meaning that not all initiatives that were cost intensive. community members were informed This was matched by the about the latest developments and understanding that in the long term initiatives. Council cannot rely on rate increases alone for financial sustainability, but must also seek to expand its revenue The Survey base through exploring other Information from the survey was an revenue raising options and through important supplement to the lobbying the State Government to workshops, since surveys are usually provide financial support of costs of able to reach a larger number of maintaining the green wedge. people, thereby increasing the A theme that ran through many representativeness of the workshop sessions, but was not fully consultation. Data collected using a explored in the consultant’s report, survey format, however, differs was the option of increasing the substantially from the rich and range of services and facilities qualitative information that results available to the community by from workshops. Rather than making better use of existing following the open ended questions resources. What became apparent in used in face to face sessions, the discussions about available services survey was more structured, using a and facilities was that there were multiple choice format to allow respondents to indicate their
40 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
preferences in relation to Council’s means of participating in decision strategic priorities as stated in the making. Council Plan. The survey also asked respondents to indicate their Representativeness of survey perceptions of Council’s overall respondents performance and ability to effectively represent the community, and The survey was very successful in whether they thought Council reaching a large number of Nillumbik provided enough opportunities for residents. Of the 20,000 surveys residents to become involved in distributed, 2,127 were returned, decision making on local issues. The giving a high response rate of 10.6%. vexed issue of proposed rate There were only slight gender increases was mentioned only in a differences in the proportion of roundabout way when towards the female (59%) and male (41%) survey end of the survey respondents were respondents. Unlike the workshops asked: where the majority of attendants had been over the ages of 55, the After collating all responses to majority of survey of respondents the survey, Council will need to (69%) fell into the 30-59 year old age consider the financial groupings. It is interesting to note implications of increasing that in the 20-29 and 30-39 years efforts/outputs in any area. In age groups there were more than Nillumbik the majority of Council twice as many female as male finances are obtained through respondents (4.7% female, 1.8% residential rates. Would you like male; and 18% female, 9% male to comment on this issue? respectively). In the 40-49 and 50-59 The survey was made available on years age groups females still Council’s website from mid-February predominate, but the difference is not 2006 and was included in a paper as pronounced. based return post form with the Looking at the representativeness of February 2006 edition of the respondents it becomes apparent Nillumbik News. Council had an that the survey format was a suitable overwhelming response to the survey way to engage large numbers of in the Nillumbik News (N=20,000) people, especially in the usually busy with over 2,000 surveys being 30-59 years age groups. This returned in the first week alone. The included those segments of the online survey had a very poor population who are time poor response rate, with only three or four because they are working long hours surveys being completed in the same or are caring for children and time period. This disparity hints that dependents. Younger women Nillumbik residents, despite being especially showed a high level of relatively well off and having access uptake. In this instance a survey was to the Internet, are not given to not, however, a suitable means of seeking out Council’s website as a contacting young residents, as is evident by the extremely low number
41 Consultation on Council Plan and Strategic Resource Plan
terms of its ability to elicit feedback Figure 12: Survey respondents by gender and age group (N=1740) and discussion beyond the parameters of the survey 20% questions; i.e. it was not, nor was it
15% intended to be, a suitable tool to identify new or emerging priorities, 10% or those that were not already captured in Council’s strategic 5% statements. This was the role of 0% the workshops. 10 - 19 20 - 29 30 - 39 40 - 49 50 - 59 60 - 69 70 plus years years years years years years years A ranking of community priorities in
Female Male relation to Council’s four strategic goal areas showed similar results (0.6%) of replies received from this to the workshops. Community health demographic. Perhaps young people and wellbeing was considered to be do not read the local paper or visit the most important, closely followed the Council website and would have by the environment and community to be contacted by an alternative assets, with governance and means. community engagement being The survey increased the considered slightly less important representativeness of the (Fig. 13). consultation process by contacting Council was briefed that a summary and receiving information from a of the ‘do more’ and ‘do the same’ large number of people. It is unclear, responses across Council’s four however, to what degree survey strategic goal areas showed support respondents reflected the to the following levels:13 demographic and socioeconomic composition of the Shire, as detailed 1. Environment (natural, built, information was not asked for. A cultural): 90% breakdown of respondent 2. Health and wellbeing 90% characteristics along the lines of age and gender shows that young people 3. Community assets: 87% remain underrepresented as Figure 13: Community priorities for strategic areas respondents. High Medium Low
Survey results 100% The survey was an 80% excellent way of getting 60% clear indications of 40% people’s level of 20% agreement with the 13 Briefing paper prepared by Jacky Shire’s strategic 0% EnvironmentClose Community as anhealth updateCommunity for assetsCouncilors Governance on & priorities. It was the &progress wellbeing of the community community however, limited in consultations, on 16 May 2006.engagement
42 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
4. Governance and community comment. Alternatively the high engagement: 85% proportion of non-responders on this Mirroring findings from the question could indicate that many persons felt comfortable leaving workshops, the survey showed that improvements to transport and decisions about rates up to Council infrastructure were the most and did not oppose rate increases. significant priority areas for the A number of reasons could have community, with 70% of respondents contributed to the disparity in stating that Council should do more attitudes between survey in these areas. respondents and workshop The survey’s findings on community participants to proposed rate attitudes to rate increases contrasted increases. It is possible (though not somewhat with the workshop results. likely, given the Shire’s demographic characteristics) that the majority of The survey asked: ‘Council will need to consider the financial implications survey respondents were less able to of increasing efforts/outputs in any afford proposed rate rises. A more area. In Nillumbik the majority of plausible explanation is that Council finances are obtained workshop attendants developed through residential rates. Would you different attitudes to proposed rate like to comment on this issue?’ While increases because the process of workshop participants had been discussion and the information largely in favour of low to moderate provided in the Participant rate rises, survey respondents were Information Kit educated them about not clear on this issue. Councillors Council’s financial situation and the were briefed that preliminary findings services it provides, thereby making them more understanding of the from the survey analysis (N=303) indicated that 60% (N=183) of need to increase revenue. respondents did not provide a Council Plan 2006-2010 comment, 8% (N=24) supported a small to moderate rate rise, 26% Workshop outcomes and survey (N=79) opposed a rate rise, and 10% results were used to brief councillors (N=39) made a general comment but on the degree of community support did not indicate whether or not they for the Shire’s goals, strategic supported a rate rise. 14 The fact that direction and community attitudes to 60% of respondents made no proposed rate increases. comment about rates could mean Despite the discrepancy in findings either that they had no strong about community attitudes to opinions about the issue or had proposed rate increases (workshop insufficient information to make a attendants were supportive, while survey respondents were not),
overall the information gathered from 14 Briefing paper prepared by Jacky the consultation was interpreted as Close as an update for councilors on the indicating that Council was on the progress of the community right track and that there was consultations, 16 May 2006.
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community support for the Shire’s was placed in the Diamond Valley strategic aims and no strong Leader and Age newspapers on the opposition to proposed rate same day. Information about the increases. This suggests that despite consultation was also posted on the the large number of people Council website, and flyers responding to the survey, the requesting community comment opinions of those who attended the were placed at the Shire Office, on workshops were given more weight community information stands and in in respect to their attitudes to rate the Libraries and Living and Learning increases. This could be because Centres across the Shire. Copies of councillors were present, and the draft Council Plan were also sent thereby able to directly ‘hear’ to participants in the nine community community voices at the workshops, consultation workshops held from or because it was thought that the December 2005 to March 2006. issue of revenue raising was Closing date for submissions was 7 contextual and depended on June 2006. In response, five written respondents having an informed submissions were received and one opinion that was shaped by verbal presentation was given to information and discussion, as was Council at the Policy and Services the case during the workshops. meeting on 13 June. Alternatively, the choice to Three of the submissions were from emphasise workshop attendees’ people who had attended the approval of moderate rate increases workshops. Two of these noted that over survey respondents’ reluctance the changes to the draft Council Plan to do so may have been necessitated 2006-10 represented a shift in by Council’s financial viability. emphasis that reflected the feedback Amendments made in the drafting of received from the community at the the 2006-10 Council Plan and SRP workshops. A further submission were changes in emphasis and the expressed support for the addition of addition of a number of strategies new strategies in the draft plan that and indicators rather than a change related to emergency management in direction. The strategic objectives and undertaking research and articulated under the goal planning to ensure that ‘we are Environment (natural, built and meeting the needs of the cultural) were refined from community’. Three submissions Environment to Natural and Built raised concerns that the Council Plan Environments; Resources to was too broad and did not give Sustainability; and Cultural Heritage enough detail about how and when it to Cultural Identity; with all others would be implemented or the remaining unchanged. specifics of the real and or tangible objectives being undertaken by The draft Council Plan 2006-10 was Council. released for public comment on 24 May 2006 for a period of two weeks. In response to the submissions, a Notification of the public consultation number of minor changes were made
44 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
to the Council Plan and two new energy use. Another, under the strategic indicators were included. objective Neighbourhood Character, Council noted that: measures the number of Council decisions upheld and those The consultations conducted overturned or excessively modified over the last 12 months, as part by VCAT. The description of the of the 2006 review of the Council objective Prosperous Community Plan, reaffirmed that the vision, was also changed to emphasise values and four key goal areas sustainability. The new phrasing is of the current Plan remain ‘Foster prosperous communities that relevant to the Nillumbik are socially and economically community. These sections of sustainable’. the current Plan have, therefore, not been amended. However, However, despite the clear indication some minor changes have been that transport congestion, roads made to the strategic objectives, infrastructure and public transport strategies and strategic were major issues for the community, indicators and these were this was not evident in changes to included in the draft Council the Council Plan or its emphasis. Plan 2006-2010.15 This may be a reflection of the tight financial situation and the fact that The Council Plan 2006-2010 was roads and service infrastructure are formally adopted by Council on 27 costly to provide. Public transport is a June 2006. Reflecting the particularly vexed issue, as the Shire discussions of the workshops, key has only limited influence over its changes related to environmental provision; Council’s main role in this issues (built and natural) and regard is limited to advocacy and sustainability, reflecting the lobbying. However, some community pressures of development and suggestions, such as the provision of change in the Shire. For example, a adequate car parking at train stations new strategy was added under the and the availability of buses or other objective Sustainability, which reads transport connecting areas within the ‘Encourage environmentally Shire, would be well within Council’s sustainable building design and the reach. use of energy efficient infrastructure within residential and commercial Strategic Resource Plan and premises’. Two new strategic Budget Kit indicators were included under the objective Natural and Built Consultation outcomes also informed Environment. One, under the the development of the SRP and the objective Resources, identifies subsequent release of the Planning change in the use of sensitive and Delivering Sustainability Budget building design and reductions in Kit 2006-2007 (Nillumbik Shire Council 2006b). Citing findings from the survey, the 2006-07 budget 15 Officers report, Ordinary Meeting of reflects community feedback by Council, 27 June 2006. ‘delivering moderate growth in
45 Consultation on Council Plan and Strategic Resource Plan
services, infrastructure renewal and maintenance and by beginning to deliver on the key projects which the community is expecting’ (Nillumbik Shire Council 2006b). In terms of financial planning, the SRP emphasised that in order to meet its financial and service commitments the Shire will need to increase overall charges and rates by 6% to 7% over five years. For the financial year 2006-07 this means that overall rates and charges per assessment will increase by 9.81%. This figure constitutes an increase in the waste management charge by 5.4% from $247.30 to $260.65 per annum, an increase in the municipal charge from $20.00 to $52.00 per assessment, and a rate rise of 7.95%.
46 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
Implications for the ‘hard to reach’ project
The public participation problem characteristics of its community, underlying the Nillumbik Council Plan which are summarised in the Council and SRP case study was how to Plan 2005-09 and documented on its engage a representative portion of website. The time poor, young the local community in a high level people, people living in rural areas consultation on strategic issues and and residents facing barriers to make tough choices about revenue participation because they lack raising and resource allocation. transport or are economically Research for the case study disadvantaged were identified as documented the approach taken by potentially hard to reach prior to the the Shire to observe how the consultation taking place. Although problem was addressed in terms of the need to include these segments the consultation and recruitment of the community was recognised, strategies chosen and the resulting ultimately this information was not outcomes. In addition, a used to design a consultation questionnaire was used to evaluate process and recruitment strategy that how participants in the workshop specifically targeted ‘hard to reach’ consultations experienced the groups. Rather, publicly advertised process. workshops and a survey aimed at all residents were chosen as a means of Engaging a representative sample of providing opportunity for all the population in community interested community members to consultation is difficult at the best of become involved. times. Council documents on public participation routinely recommend While this approach based on self- consultation of people who will be selection theoretically allows affected by an issue and Nillumbik is everyone to become involved, the no exception (Nillumbik Shire Council research documented above 2004). Deciding who is affected by demonstrates that in actuality certain an issue may be linked to place or groups are more likely to participate particular issues, it can be confined than others. Groups identified as to the users of a service, or could hard to reach prior to the consultation include all citizens of the municipal taking place were underrepresented. area. There are no clear guidelines This confirms that designing a to help decide who is affected and successful consultation strategy that how to involve them. However, is inclusive of a representative demographic information and sample of the community needs to knowledge of the local community actively target community members and its issues are helpful in using a range of techniques. identifying ‘hard to reach’ groups for The Council Plan 2005-09 any given consultation process. emphasises Nillumbik Shire’s Nillumbik Shire Council has a good commitment to community grasp of the demographic consultation and engagement.
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Finding ways by which Council and are carried out to secure procedural the community can improve how they legitimation of democratic processes, work together was also an identified that is, those processes which serve objective of the consultation to secure the consent of the (Nillumbik Shire Council 2005). governed, may require full inclusion Nillumbik’s leading role in the ‘hard to (Klausen and Sweeting 2002). In reach’ project attests to this local government, even consultations commitment. Involvement by the on high level plans and strategies mayor and Councillors in most of the which affect the entire community workshop sessions underlined this may not require full inclusion, but and demonstrated that Council was should at least aim to involve a serious about listening to community representative sample of the views. The presence of elected municipality’s population to ensure representatives added political the legitimacy of decisions made on weight to the consultation the basis of public participation. In workshops, as ideas and information reality, however, due to their arising were heard directly by complexity, consultations on major Council and did not have to be policies and strategies are often mediated by Council officers. In this carried out involving only a small way, the community had the ‘ear’ of number of community members who Council. are often not representative of the broader demographic, as was the However, due to restrictions of time case here. and resources, the goal of making consultation processes more The other key dimension of representative was obscured. democratic legitimation is the Participants noted on numerous effectiveness of political institutions, occasions during the workshops that which hinges upon the ability to certain segments of the community deliver outcomes and address were not represented. Discussions emerging issues and needs as they during meetings led to several arise (Hanssen, Klausen et al. 2003; excellent suggestions about how to Klausen and Sweeting 2002). involve other groups, but these were Consultations that are based on a not followed up. Young people functional premise, such as a service especially were conspicuously review or an operational matter, are absent. usually aimed at a subset of the municipality’s population and do not This comes back to the question of usually require full inclusion (though the degree to which the legitimacy of they may benefit from it). However, decisions made on the basis of even in these instances, only a small consultation depends on the proportion of the affected citizens representativeness of those take part in the consultation process. consulted. Two different requirements of representativeness The need for representativeness, the emerge, depending on the issues requirement to provide outcomes consulted upon. Consultations that using transparent processes and the
48 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
question of the role of consultation in which draws on the outcomes of the the decision-making process are all consultation analysed here is a issues with which all councils useful document feeding back to the struggle, especially as the design of community why certain decisions inclusive processes and the setting were made and why rate rises were of priorities are often driven by necessary. pragmatic considerations. Another development is that, shortly The consultation on the Nillumbik after the conclusion of the Shire Council Plan and SRP elicited consultations, staff from Shire’s informed and high quality feedback Social Planning – which had been through the workshop process and instrumental in conducting the gathered community preferences consultation – left Council. from a large number of residents Unfortunately the knowledge gained using a questionnaire. Information from the consultations is now no drawn from the survey largely longer retained by Council, and the supported the findings from the skills and insights gained by staff are workshops, with one notable lost. exception. Unlike the workshops, the Nillumbik Shire Council is committed majority of survey respondents were to engaging and listening to all facets not in favour of rate increases. This of its community. Council is aware highlights the need for Council to that extra efforts need to be made to make tough decisions about revenue involve those who are not usually raising in the face of opposing public inclined to participate. To this end, opinion if it is to remain sustainable. the Shire is initiating new, more The need to increase rates may have representative ways of engaging and been a foregone conclusion involving the community. Nillumbik necessitated by Council’s financial Talkback, a community panel, has realities even prior to the consultation been set up to facilitate greater taking place. Given the requirement representativeness in future to increase Council’s revenue if it is consultations. Nillumbik Talkback will to remain financially viable, the role comprise a panel of 1,000 of the consultation was to gauge community members who will community opinion and inform them participate in four to five surveys or about the Shire’s financial needs, discussion groups a year. rather than to engage in an actual debate about whether or not to Nillumbik is continuing to collaborate increase rates and fees. While in the ‘hard to reach’ project to educating and informing the develop new strategies, resources community is a valid outcome of and share knowledge that will assist consultation, care must be taken not councils to face the challenges of to raise false expectations about the public participation. The result will be outcomes that will result from any clearer goals linking targeted given public participation. Nillumbik’s consultation and resources to Planning and Delivering strengthen governance and Sustainability Budget Kit 2006-2007 democratic processes.
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50 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
Recommendations
The Shire of Nillumbik has to care must be taken to ensure that manage the competing demands of each is compatible with the its rural and urban populations to outcomes desired and is suitable for provide adequate services to both. In the target audience. For example, the process, it has to make difficult comparing community responses to decisions about resource allocations. complex issues resulting from a This case study of the consultation process of education and on the Council Plan and SRP has deliberation with results based on a shown the Nillumbik community to be minimum of information or multiple informed, engaged and passionate choice is like comparing apples with about the place they live in and the oranges. issues affecting them. Council has It is recommended that Council made an effort to involve the public carefully consider the degree to through workshops, calls for which participatory mechanisms submissions, and a survey, which chosen as part of a consultation had a very high response rate. strategy are compatible and facilitate As always there is scope for the identified aims and outcomes of improvement. A number of measures the consultation. could be taken to enhance the representativeness of the Representativeness of the consultation processes and increase consultation the benefit to Council of their outcomes. The representativeness of the consultation process is crucial to Participation strategy ensuring its democratic legitimacy and gives Council a credible basis for Choosing the right participation decision making. Not all community process for the type of information members are equally likely to sought and outcomes desired is participate. Public responsiveness critical to the success of the depends on the avenues for consultation. For example, if Council involvement offered; the way in wishes to elicit community feedback which people are invited to about complex choice questions, participate, ease of access and the then deliberative and face to face way the issue is presented as being methods of consultation are more relevant to the community. In the appropriate than a survey based case study examined in this report, format. This also applies if Council people under the age of 35 and rural wishes to educate the community communities were significantly about difficult decisions it faces. underrepresented. This highlights the Most consultations use multiple fact that populations that Council can methods to facilitate community find hard to reach are not necessarily participation. When selecting these, minority groups.
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It is paramount that efforts are made how the community preferences will to actively reach out to populations inform decision making, what to do if that are underrepresented in the opinions expressed during the consultation process, especially consultation do not fit with Council’s young persons. This can be intentions and how this will be facilitated through active outreach, by communicated to the public. better utilising already established relationships between Council and Planning and resource the community, choosing appropriate allocation consultation mechanisms, and facilitating access (e.g. provision of It is important Council consider at the community transport, childcare, use outset of the consultation the of engaging language and location resources required, in the form of for young people). staff time, available venues and money. Decision making based on Skills development consultation outcomes Skills in planning, implementing and The way information from a evaluating consultative techniques consultative process is used by greatly affect the effectiveness of the Council affects the quality of the participatory process. Council outcomes as well as the credibility of provides some guidance to its staff decisions made. For example, if the about how to conduct community community preferences expressed consultation. However, they may during a consultation are at odds with struggle to use these resources Council’s preferred course of action, effectively without supplementary then it is necessary to communicate training. to the community why certain decisions were made and how Council could consider extending the community feedback was used in the current framework for training staff to process. If consultation outcomes are include community consultation. This simply ignored it may create the would equip staff across all impression in the community that departments with a common they have not been listened to and understanding about how to conduct that their opinions have been effective and inclusive community ignored. consultation. It is recommended that, at the Knowledge management conclusion of the consultation, Council take steps to actively To maximise the benefits of a promote the outcomes of the process consultation to the organisation, to the community to avoid information garnered from the perceptions that the community is not process needs to be disseminated being listened to. widely across Council. This also avoids ‘consultation fatigue’ which It is suggested that Council consider, can be experienced by the prior to a consultation taking place,
52 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
community if they are repeatedly consulted on related issues in a short period of time.
Council should consider implementing a mechanism to manage data and knowledge transfer between staff and consultants and across Council more broadly. This could be in the form of a central shared electronic resource for consultation data. Another successful way of doing this is to appoint a dedicated staff member to coordinate consultation efforts across departments.
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References
Arnstein, SR (1969) ‘A ladder of Labeled ‘Hard-to-Reach’, Edict citizen participation’, Journal of (Eliminating Disparities in Clinical the American Institute of Trials), Houston, Tex., Planners, 35(4), pp. 216-24
54 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
Duncan, DF, JB White & T Nicholson Series, Paper no. 138, Policing (2003) ‘Using internet-based and Reducing Crime Unit, Home surveys to reach hidden Office, London, populations: Case of nonabusive
55 Consultation on Council Plan and Strategic Resource Plan
Murphy, P (2006) Practical: Rowe, G, R Marsh & LJ Frewer Reaching the Hard-to-Reach, (2004) ‘Evaluation of a ProjectsETC, London, deliberative conference’,
56 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
Appendix 1
Flyer advertising community workshops in December 2005
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Community Workshops
Tell us your thoughts on …
9 Key issues for Nillumbik in the next 3 to 4 years 9 Priorities for Council in the next 3 to 4 years 9 How we can work better together
Please come along and have your say at our first group of community workshops:
Hurstbridge Community Hall: Mon 5 Dec (12pm-2.30pm) (Melways Ref: 263 A8)
Emergency Operations Centre/ Kangaroo Ground Hall: Wed 7 Dec (7.30pm-10pm) (Melways Ref: 271 E9)
Eltham Community Reception Centre: Thur 8 Dec (12pm-2.30pm) 801 Main Road Eltham (Melways Ref: 21 J6)
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Appendix 2
Flyer advertising community workshops in February 2006
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Workshop dates and venues
Thursday 23 February (10am -12.30pm) Council Offices Greensborough: (Melway: 11 A10)
Thursday 23 February (7.30pm -10pm) Diamond Creek Bowling Club (Melway: 12 A6)
Sunday 26 February (12.30pm - 3pm) Hurstbridge Community Hall (Melway: 263 A8)
Monday 27 February (7.30pm -10pm) Emergency Operations Centre/ (Melway: 271 E9) Kangaroo Ground Hall
Wednesday 1 March (7.30pm -10pm) Panton Hill Living & Learning Centre (Melway: 263 K9)
Thursday 2 March (7.30pm -10pm) Eltham Community Reception Centre (Melway: 21 J6)
Friday 3 March (12.30pm - 3pm) Warrandyte Community Centre (Melway: 23 F11)
Wednesday 8 March (7.30pm -10pm) Yarrambat Golf Club (Melway: 184 F5)
Refreshments will be provided
RSVP: Megan Andrews [email protected] or 9433 3210
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Appendix 3
Personalised invitation to the community workshops
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Dear (As addressed)
Nillumbik Shire Council invites you to a community workshop
Council would like to invite you (or a representative of your organisation) to attend a workshop to discuss community priorities for Nillumbik. Three workshops are planned for early December and another seven will be held in February 2006. Further details are provided in the attached invitation.
The workshops provide an opportunity for community members to identify priority issues for Nillumbik over the next 3-4 years, consider how these priorities link to the goals of the Council Plan and discuss how resources should be allocated towards achieving identified priorities.
Questions for discussions will include: • What do you think are the key issues for Nillumbik over the next 3-4 years? • What is Council's role in meeting community expectations regarding representation and advocacy, planning, infrastructure (roads, footpaths, buildings, parks etc) and services to the community? • What priorities should Council focus on over the next 3-4 years and how should these be reflected in our financial/resource planning process? • How can Council and the community improve the way we work together?
These workshops are the start of a process for gaining greater community involvement in Council’s planning and decision making processes. All community members are welcome to attend. Individual invitations have also been sent to specific community groups to encourage representation from a broad range of age and special interest groups within the community.
We hope you are able to attend and we look forward to meeting you at one of the workshops. To register your interest, please contact Megan Andrews by email at [email protected] or by phone on 9433 3210.
Yours sincerely
Cr Greg Johnson Bill Forrest Mayor Chief Executive Officer
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Appendix 4
Participant evaluation questionnaire
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Participant evaluation of Nillumbik Shire Council Consultation Process
The Shire of Nillumbik invites your feedback on the workshops you recently attended. This is part of an evaluation of the consultation process, which is being undertaken by the Institute for Social Research at Swinburne University and may be also used by council. Below are some statements about the consultation process. Please circle your preferred response, from 1 (strongly agree) to 5 (strongly disagree).
Neither agree Strongly Strongly Disagre Agree nor disagre agree e disagre e e A) I am clear about the purpose of the .. 1 ...... 2 ...... 3 ...... 4 ...... 5 ... workshop. B) I am clear about my role in the consultation .. 1 ...... 2 ...... 3 ...... 4 ...... 5 ... process. C) Information at the workshop was presented .. 1 ...... 2 ...... 3 ...... 4 ...... 5 ... in a clear and understandable way. D) At the workshop there was enough time for .. 1 ...... 2 ...... 3 ...... 4 ...... 5 ... participants to have their say. E) At the workshop I was given enough opportunity to make a contribution and voice .. 1 ...... 2 ...... 3 ...... 4 ...... 5 ... my concerns. F) I thought the workshop was well facilitated. .. 1 ...... 2 ...... 3 ...... 4 ...... 5 ... G) I think everyone affected by the issue consulted upon has a fair opportunity to .. 1 ...... 2 ...... 3 ...... 4 ...... 5 ... participate in the consultation. H) The workshop was run in an unbiased way. .. 1 ...... 2 ...... 3 ...... 4 ...... 5 ... I) The recommendations that came out of the .. 1 ...... 2 ...... 3 ...... 4 ...... 5 ... workshop reflected the discussion. J) I think council will listen to community .. 1 ...... 2 ...... 3 ...... 4 ...... 5 ... views. K) The location of the workshop was convenient for me (eg public transport .. 1 ...... 2 ...... 3 ...... 4 ...... 5 ... available, disability access, safety, parking etc). L) The timing of the workshop made it easy for .. 1 ...... 2 ...... 3 ...... 4 ...... 5 ... me to attend.
64 Community Consultation and the ‘Hard to Reach’ Nillumbik Shire Council Case Study Report
M) How did you hear about the workshop?
......
N) I know of others who would have liked to attend the workshop but weren’t able to for the following reasons …
......
O) Is there anything else you would like to say about the consultation? ......
P) I am male female
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Q) My age group is R) I mainly work under 18 Full time 18-24 Part time / casual 25-34 Unemployed 35-44 Retired 45-54 Student 55-64 Full time parent / carer over 65 Other
S) Do you speak a language other than English at home? Yes No
If yes, please specify the MAIN language you speak at home.
......
T) What is your postcode? ......
66
67
FOLLOW UP INTERVIEW
As part of the project evaluation, researchers from Swinburne may want to contact you to ask some follow up questions, either in person or on the phone. If you are willing to answer some follow up questions, please provide your contact details below."
All responses will be confidential.
Name:
Address:
Email:
Phone:
68
Appendix 5
Paper based survey for community consultation used in February 2006
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